The Scottish Government

2nd REVIEW OF NORTHERN CONSTABULARY PRIMARY INSPECTION OF 2000

• EXECUTIVE SUMMARY
• This Second Review Inspection of Northern Constabulary was conducted by HMIC in June 2003 and focuses on the actions taken by the force in response to the recommendations and suggestions made in the Primary Inspection of the force in 2000. The Primary Inspection Report made 7 recommendations and 12 suggestions in relation to a number of areas including performance monitoring and reporting, processes and resources, and people management.

Of the 7 recommendations and 12 suggestions contained within the Primary Inspection report, 4 recommendations and 6 suggestions were discharged by HMIC at the First Review Inspection in 2001. Following the Second Review, HMIC now discharges the remaining recommendations and suggestions.

Since the Primary Inspection of 2000, the Force Executive has changed. Mr Ian Latimer became Chief Constable in September 2001 following the retiral of Mr William Robertson. Mr Gary Sutherland recently took over as Deputy Chief Constable on March 2003 following the retiral of Mr Keith Cullen.

In addition to assessing progress made against recommendations and suggestions contained within the Primary Inspection report, HMIC required an update on progress made against the recommendations of recent thematic inspections conducted since the last Primary Inspection. Additional areas subject of inspection during this Review included the force's Race Equality Scheme, Crime Management and Professional Standards and Complaints.

The force has recently been the focus of significant media attention in respect of its approach to crime investigation and its handling of complaints against the police. In addition, the immense geographical area covered by the force presents a clear logistical challenge when responding to these issues. In recognition of, and response to, the above the force has reviewed its policies and procedures in respect of complaints and crime management. This Review Inspection has enabled HMIC to assess the force's progress in implementing these changes.

Whilst accountability for crime management rests at Area Command level under the force's system of Devolved Resource Management, the force now operates morning briefing meetings to review the preceeding 24-hour crime and noteworthy incidents. These meetings are held locally and at force headquarters, Crime Support Unit. In addition, the force has introduced two additional detective inspector posts extending DI coverage to all eight Area Commands. The force recognises the importance of having processes in place to ensure that serious crime is identified and allocated an appropriate response at an early stage of the investigation. In addition, the force has recently completed a Best Value Review of Crime Management and the force is currently considering the "Opportunities for Improvement" identified. HMIC notes the progress the force has made in this area with the acknowledgement that the investigation of serious crime requires corporate ownership and accountability.

As regards complaints against the police, HMIC notes that there has been a root and branch restructuring of the way the force responds to complaints which includes processes, additions to staffing levels and technical support and premises. HMIC is encouraged by the rapid progress made by the force in a short period of time and acknowledges the Force Executive's clear commitment to introducing practical policies that work and resourcing them appropriately.

The Race Relations (Amendment) Act 2000, created a positive duty for chief constables to eliminate racial discrimination and promote good relations between persons of different racial groups. HMIC notes that the force's Race Equality Scheme addresses the statutory requirements. It does not, however, document a framework to incorporate the views of minority ethnic groups within the force's consultation processes. HMIC welcomes the fact that almost all staff have now received cultural awareness training and would encourage the force to consider evaluation to inform provision of refresher training.

HMIC acknowledges the significant progress the force has made in addressing the recommendations and suggestions made in the Primary Inspection report. A number of positive developments have occurred in the interim and the Force Executive is clearly committed to delivering a positive policing service to the public served by Northern Constabulary. Key management, structure and process changes have been made in the areas of crime management and police complaints to improve service delivery and HMIC looks forward to assessing the impact of these developments at the next Primary Inspection of the force.

• INTRODUCTION

Following a review of the inspection process in 2002, HMIC moved to a five yearly inspection cycle. The primary inspection, which initiates the process, comprises a comprehensive examination of all aspects of force activity at a more strategic level with subsequent field work focusing on areas of business which attract particular attention due to performance levels, variations from common practice or concerns identified about the approaches followed. The process also seeks to identify good practice from which other forces or common services could learn. The primary inspection is followed by two review inspections at 18-month intervals. These focus on:

HMIC methodology for review inspections involves the preparation of an appropriate set of questions to address the issues selected from the list shown in paragraph 2.1. This will provide a structured and relevant examination of the organisation and ensures the inspection will be evidenced based.

This Review Inspection of Northern Constabulary was conducted in June 2003 by Her Majesty's Chief Inspector of Constabulary, Sir Roy Cameron, Her Majesty's Lay Inspector, Mrs Jane Irvine and Assistant Inspector of Constabulary, Mr Kenneth McInnes.

This Second Review Inspection includes the force's response to the recommendations and suggestions made in the Primary Inspection Report of Northern Constabulary in 2000. HMIC recognises that the recommendations and suggestions need to be carefully considered by the Force, often have resource implications and may need to be approached in a phased and prioritised way.

A force may choose not to follow or adopt an HMIC recommendation or suggestion and set out an argued case for not doing so. In turn, HMIC may comment on this but the debate is a public one for the Police Authority, Ministers and wider public to take a view.

This Review, which is made public through the Police Authority and the HMIC website, is a part of the transparency and accountability process of a police force.

3.FORMAT

Primary Inspection 2000 The format of this part of the Review Inspection lists the recommendations and suggestions of HMIC, followed by the force position and comments by HMIC. Matters which have been formally "discharged" at the conclusion of the First Review Inspection are not normally the subject of further report or comment at this stage. (Sections 3 and 4)

Thematic Inspections HMIC requires an update on progress made against the recommendations of the thematic inspections conducted since the Primary Inspection of a force. This section of the review includes Northern Constabulary's response to:

• Narrowing the Gap
• Fire- Raising the Standard
• A Value Judgement
• For Police Eyes Only
• Making Crime Pay

"Without Prejudice" and "A Fair Cop?" have also been published since the last Primary Inspection. However, given the subsequent follow-up activity to these studies, a force response was not required at this time. (Section 5)

The additional areas subject of inspection are:

• Race Equality Scheme (Section 7)
• Crime Management (Section 8)
• Professional Standards and Complaints (Section 9)

4. RECOMMENDATIONS OF THE 2000 PRIMARY INSPECTION

Recommendation 1 -

HMIC recommends that Operational Performance Reports (OPRs) contain more statistical performance data. (Paragraph 2.9)

Force Position 2002

The Force is currently undertaking a major Best Value Review of all operational information needs with a focus on the front line. Included in the review is the presentation of statistical information data on Operational Reports.

HMIC Comments 2002

HMIC will revisit this recommendation at the next Review Inspection.

Force Position 2003

The Force has improved the provision of management information through the provision of crime and road accident data packs on the Common Operating Environment (COE) where all staff, including Area Commanders and their reviewing officers, have easy reference to performance of the Force. The monthly statistical packs produced by Human Resources Service Unit in respect of people issues now contain comparative data for the Force and units. OPRs now contain more specific performance data in relation to objectives and targets for the units.

Within the Force Action Plan for 2003/04 is the aim to further consolidate our ability to bring performance indicator data into a single monitoring process to enhance the internal and external performance reporting.

HMIC Comments 2003

HMIC notes the developments in force in the management and provision of performance information. The Force has now developed the Operational Performance Reports to contain information on performance against objectives and, in some areas, these OPRs are used for public information purposes. These reports contain limited statistical information on matters of local concern and force performance in that regard.

The Force has stated its objective to consolidate the provision of performance management information within the Organisational Development Plan with the intention of providing key performance information into monthly reports accessible at desktop and to introduce a single monitoring process to enhance internal and public performance reporting. HMIC considers this recommendation discharged.

Recommendation 2 -

HMIC recommends that the Force complete job descriptions for all police posts as soon as possible. (Paragraph 4.10)

Force Position 2002

This recommendation is being progressed within our 2001/02 Force Action Plan by Human Resources as part of Phase III of the Competency Project, to be completed within the financial year.

HMIC Comments 2002

HMIC considers this recommendation to be discharged.

Recommendation 3 -

HMIC recommends that the guidance manual on the care and custody of prisoners be progressed as a matter of priority. (Paragraph 6.7)

Force Position 2002

Custody and Care of Prisoners Handbook has now been published and circulated forcewide.

HMIC Comments 2002

The force has confirmed to HMIC that the Custody and Care of Prisoners Handbook was circulated forcewide in June 2001. This recommendation is discharged.

Recommendation 4 -

HMIC recommends that the Force reconsider its arrangements for the safe keeping and destruction of controlled drugs. (Paragraph 6.21)

Force Position 2002

The Force has reconsidered arrangements and is satisfied that the current procedures meet the needs of the Force and satisfy security arrangements.

HMIC Comments 2002

HMIC notes that the matter was reviewed by means of a discussion between Head of Operations and the Head of Operational Support Service Unit. To that extent the recommendation has been addressed. HMIC will revisit this issue at the next Review Inspection, to be satisfied that no difficulties have emerged with the working arrangements, before this recommendation is discharged.

HMIC Comments 2003

HMIC is advised that this arrangement is causing no practical difficulties for the force at this time. A Best Value Review of Operational Support Unit and Crime Support Unit is planned for this year and it is anticipated that drugs storage arrangements will feature in this review. HMIC considers this recommendation to be discharged.

Recommendation 5 -

HMIC recommends that the Force affords a priority to extending access to its computer systems to all staff. (Paragraph 6.31)

Force Position 2002

The computer network that enables remote police stations to receive a range of IT services has been expanded so that 64 stations across the Force area are now connected. This almost doubles the previous number of stations and represents more than three-quarters of all stations in the Force. The Force has also just completed the roll out of a Common Operating Environment that will substantially improve our ability to store, move and access information on a Forcewide basis.

HMIC Comments 2002

HMIC notes force progress and given the importance attached to this recommendation will revisit it at the next Review Inspection.

Force Position 2003

The current position is that 68 stations are now networked and additional sites, including the British Transport Police station in Inverness and The Highland Council emergency centre in Inverness.

This represents 570 computer workstations across the Force, mainly 'thin clients' working off the central servers for our Common Operating Environment, but also some 'fat clients' for COE administrators and some stand-alone specialist systems.

The strategic decision has been made that the network expansion is now complete and the few stations remaining un-networked are subject to review in terms of their future viability.

The Force is now connected to the CJX and external e-mail facility is being rolled-out to all staff with a role related requirement.

The Force ICT Strategy has recently been completely revised and is available.

HMIC Comments 2003

HMIC notes the progress the force has made in upgrading the system and the provision of computer network access to 68 stations within the force. During the inspection, positive comment was received from staff as to the benefits which increased access has brought. The force considers the network expansion to be complete and in line with operational requirements. This recommendation is discharged.

Recommendation 6 -

HMIC recommends that the Force prepare an action plan to address the late renewal of firearm and shotgun certificates. The action plan should include an analysis of the problem with details of how the force are going to tackle the problem and should include performance indicators. (Paragraph 6.43)

Force Position 2002

A dedicated officer has been appointed to review current procedures and implement an action plan, which will assist in reducing timescales in respect of firearm renewals. Analysis has shown that 75% of renewals giving cause for concern have not been submitted timeously by the applicant. Accordingly, several initiatives have already been implemented to address this problem, including rewording of reminder letters, the issuing of final reminders, and the introduction of new non-renewal forms. A final report has been submitted and is being progressed by the Head of Operations in terms of implementing the recommendations contained therein.

Support Material

Update report by the force on the Thematic Inspection on Firearms Administration.

HMIC Comments 2002

HMIC recognises that the force prepared a 'Firearms Licensing Action Plan' and has taken positive action to address the issue of late renewal of firearm and shotgun certificates. These measures include reporting firearm renewal performance in part of the 'Quarterly Performance Review' process. HMIC will revisit this recommendation at the next Review Inspection with particular reference to implementation of the Action Plan. The importance and urgency attached to this area is re-emphasised.

Force Position 2003

Systems are now in place from the Action Plan which ensure that when a certificate expires without application being made for renewal, the local officers are tasked to ensure that firearms are not illegally held.

Where any renewal enquiries are outstanding these are notified to the Head of Operations who addresses the issue with the relevant Area Commander during Performance Reviews. This has proved very successful in prompting timeous progress of enquiries such that only one such example arose in the past six months.

We have now entered a two year period in the licensing cycle when the number of licenses requiring renewal is low.

HMIC Comments 2003

During the Review Inspection, HMIC spoke with Firearms Licensing and Area Command staff regarding the implementation of the revised procedures. Reminder letters to certificate holders have been reworded and management oversight of outstanding certificates appears to be robust, this matter now being included in Operational Performance Reports. HMIC considers this recommendation to be discharged.

Recommendation 7 -

HMIC recommends that the Force develop robust guidelines relative to the security of firearms and this should include the process involved in relation to the storage of firearms in circumstances which, although satisfactory at the time of inspection, are not intended to continue or are likely to change during the course of the certificate. The guidelines should also specify the responsibility for follow up enquiries and should include a monitoring policy to ensure compliance with force procedures. (Paragraph 6.45)

Force Position 2002

All officers are instructed to strictly adhere to national guidelines on firearm security. There is no discretion for any temporary arrangements.

Support Material

Firearm Security Handbook and Firearm Security Notes for Guidance.

HMIC Comments 2002

HMIC notes the force position and in view of the clear directions about 'no temporary arrangements' considers this recommendation is discharged.

• SUGGESTIONS OF THE 2000 PRIMARY INSPECTION

No 1 -

Consideration is given to providing the welfare officer with access to the force personnel system. (paragraph 4.43)

Force Position 2002

Since the Primary Inspection the then Force Welfare Officer has retired and the two Welfare Officers who job share this post are located within Police Headquarters where they have access to all personnel and relevant systems.

HMIC Comments 2002

HMIC considers this suggestion discharged.

No 2 -

Problem solving activity should be included in Operational Performance Reports and reported Force wide in a standard format. (paragraph 5.11)

Force Position 2002

Guidance has now been issued to standardise the format of reporting problem solving activity in Operational Performance Reports. This is based upon the SARA (Scanning, Analysis, Response and Assessment) formula. They continue to be collated within Operational Support Community Safety section for the Force.

Support Material

Copy of the instructions giving guidance issued to Area Commanders and Operational Support.

HMIC Comments 2002

HMIC notes that guidance was issued on 15 August 2001, by way of an instruction at the meeting of the Area Commanders and Operational Support. HMIC will revisit this suggestion at the next Review Inspection and study sample Operational Performance Reports.

Force Position 2003

Problem-solving policing remains at the 'core' of our policing style and approach. This has been re-enforced within the revised Force strategy for 2003-06 by the Chief Constable. Whilst progress has been made since August 2001 to mainstream problem-solving into all our policing activity it is recognised that much more needs to be done. The Force has made much progress in implementing successfully the NIM but work is currently underway to ensure that PSP is a central element within the Force tasking and co-ordination processes. The Best Value Review on public re-assurance will have an important focus in sustaining and developing PSP across the whole Force.

HMIC Comments 2003

The force has problem solving very much at the centre of its approach to operational activity. HMIC notes the progress made thus far and the impact of developments concerning implementation of the National Intelligence Model subsequent to the last Primary Inspection. This is very much an ongoing issue, and whilst this suggestion can be discharged at this time, this is an area which will be of interest at the next Primary Inspection.

No 3 -

The Force consider a comprehensive review of the proactive and investigative capacity to address child protection issues. (paragraph 5.23)

Force Position 2002

A number of steps have been have taken some of which are ongoing -

The Force Reference Document has been revised.

The Child Protection Committee is to issue new inter agency guidelines.

A capital bid has been placed to purchase a colposcope, which will increase the Forces resilience when adhering to the guidelines regarding the use of Police Surgeons.

A review is being carried out of the Child Protection Database with a view to networking it throughout the Force Area via HOLMES II.

Intelligence gleaned from Child Protection files is being back record converted onto the Force Intelligence Database in preparation for the introduction of Part V of the Police Act 1997.

HMIC Comments 2002

HMIC notes the force response and progress to date. This will be revisited at the next Review Inspection.

Force Position 2003

A new Force Reference Document is in place and is reviewed quarterly. The CPC guidelines have been in circulation for 12 months and are currently being reviewed. The colposcope is in place and 3 doctors are trained in its use - two from Medacs and one paediatrician. The HOLMES 2 database is being utilised for child protection files and available to Local Child Protection Officer's throughout the Force area. Back record conversion of a child protection files for Part V has been completed.

HMIC Comments 2003

HMIC recognises the importance which the Force places upon the effective investigation of child protection issues. Staff of the Child Protection Unit at Inverness were visited as part of the Review Inspection and presented as professional and dedicated to their task. The Unit comprises 1 detective sergeant and 3 detective constables. There are also 52 officers in force trained in child protection issues. Progress in the review of Child Protection Committee Guidelines, Force reference Document and the provision of paediatric medical provision is welcome.

The Force has assessed itself against the recommendations of Lord Laming's report following the Inquiry into the death of Victoria Climbie. As a result recommendations have been made to the Force Executive largely surrounding training and awareness. HMIC notes the commitment to initial, refresher and specialist training in this field which the force has embarked upon. This includes ensuring the force has a sufficient number of detective constables trained in child protection issues.

HMIC considers this suggestion discharged.

No 4 -

Financial performance monitoring is an area to be developed. (paragraph 5.46)

Force Position 2002

Monthly report packs now include information on Transfer Related costs, Major Incident and Royal Visit costs and Police and Support Staff overtime. All the reports within the pack show a comparison with the corresponding period in the previous financial year. On a quarterly basis information on expenditure profiles over Service Units is provided in a graphical format.

Support Material

The July 2001 financial report pack.

HMIC Comments 2002

HMIC considers this suggestion discharged.

No 5 -

Further progress should be made in the development of Oracle budgetary management information. (paragraph 5.56)

Force Position 2002

The 2000/2001 budget has been input at a 'Child Level' (departmental level) for the following Service Units - Operational Support, Crime Support, Performance Services and Finance & Asset Management. All Headquarters Service Unit budgets will be input at this level from 2002/2003 onwards. In addition a pilot exercise to enable Area Command budgets to be input at this level is being run in the Badenoch, Strathspey & Nairn area command. This will be reviewed at the end of September 2001.

HMIC Comments 2002

HMIC acknowledges the progress made and will revisit this suggestion at the next Review Inspection.

Force Position 2003

All Headquarter Service Unit budgets are now input at "Child Level" and this has proved a very powerful tool for financial management.

A training programme is being undertaken for Area Command Administrators to ensure that the Oracle system can be utilised at local level for the extraction of financial information. This programme will also be rolled out for Service Unit Administrators over the course of 2003/04.

When the training is complete, the end users will then be better placed to know the capabilities of Oracle and the reporting requirements Area Commands and Service Units have. Once these requirements are clearly defined, there will be further development of Oracle reporting functions to meet these needs.

It is anticipated that from 2004/05 the Oracle system will be defined for Northern Constabulary in such a way as to provide quality management accounting information to all Service Unit Managers and Area Commanders at a local level.

HMIC Comments 2003

HMIC notes the progress the force has made in the provision of financial management information and the training programme commenced for Area Command Administrators. Further development is planned by the force to provide financial information locally to Area Commanders and Service Unit Managers. HMIC considers this suggestion discharged.

No 6 -

The Force consider the introduction of a 'Firearms Incident Monitoring Group' as a mechanism for identifying and promoting experience and good practice.

(paragraph 6.20)

Force Position 2002

Formal debriefs of all firearms incidents are undertaken with a view to identifying problems encountered and highlighting areas of good practice. Any learning points identified are quickly disseminated to all Tactical Firearms Advisors and through the training programme, to all Authorised Firearms Officers. Given the fragmented nature of the area and the small number of Firearms Incidents it is felt that this system fulfils the HMIC's suggestion regarding sharing of experience without the need to set up a Firearms Incident Monitoring Group.

HMIC Comments 2002

HMIC accepts the force position and considers this suggestion discharged. At the next Review Inspection HMIC will seek evidence of process and effectiveness.

Force Position 2003

We are discharging our obligations in respect of post-incident de-briefs without the necessity for a Firearms Monitoring Group. If we had such a group, it would consist of those who are already involved in the de-brief aspect. The actions following a firearms incident are documented within the FRD (Force Reference Document) on Investigations & Remedies (Post Incident). This document has undergone substantial update and a new draft has been produced. This will be tested at tabletop Exercise Iceberg. The learning points from de-briefs are recorded, actioned - normally for resolution by Firearms Section and subsequently reported on. Any action/recommendations are evidenced and dealt with. Timescales may vary and some are cost related i.e. night vision equipment, deficiencies in radio equipment, training with Dog Section, training with surveillance teams (Mobile Armed Support). Immediately following a firearms operation we have a hot de-brief. This is tightly focused on operational issues. The second cold de-brief should be held within one month of the operation and addresses wider aspects of the operation. The outcome of both de-briefs is documented on the Firearms Action Plan OP/65/4 which along with any accompanying papers is routed through the Head of Operations, Deputy Chief Constable and then returned to Firearms Section for filing.

HMIC Comments 2003

During the review Inspection HMIC spoke with relevant staff and viewed examples of firearms incidents debrief reports. HMIC is satisfied that good practice and learning points emerging from incidents are effectively promulgated throughout the force and considers this suggestion discharged.

No 7 -

Some scope remains for review of the data protection function within the Force. (paragraph 6.34)

Force Position 2002

Since the HMIC Inspection a full review of the Data Protection function has occurred. This has led to a number of changes to the structure of the Data Protection function.

The Data Protection Manager was responsible for all data protection and information security matters. He had no staff and with the increase in subject access requests and the requirement nationally for the Force to comply with the Community Security Policy his ability to carry out audits had become very limited.

It was agreed to appoint an Information Security Officer to take on the Community Security Policy compliance and to deal with the increasing requirements of information security in general. Mr Ian Williams was appointed in October 2000.

In January 2001 Mrs A Macleod (the IT and Communications Administration Assistant) had her role split between IT and Comms and Data Protection (15 hours a week). This proved to be a demanding on her time and it was decided to appoint her on a permanent basis as a Data Protection Assistant in April 2001.

HMIC Comments 2002

HMIC considers this suggestion discharged.

No 8 -

A new audit programme for force systems is now required. (paragraph 6.34)

Force Position 2002

Since April 2001 one major Data Protection Audit has been completed of the Orkney Command Area. It has been agreed that 6 major audits will be completed each financial year. A programme has been drawn up for the financial year 2001/02.

The Information Security Officer has drawn up a draft programme of Information Security Audits. This is part of the compliance requirements of the Community Security Policy. These will be carried out over a two-year programme.

HMIC Comments 2002

HMIC considers this suggestion discharged.

No 9 -

The Force examine administrative processes in respect of the renewals of firearm/shotgun certificates and consider introducing a system of random audit.

(paragraph 6.44)

Force Position 2002

An Action plan was drawn up with the intention of resolving issues highlighted in the HMIC report.

As part of the action plan and to progress it, a police officer was seconded to the Licensing Department.

Initial analysis showed the 76% of renewal applications were not received 6 weeks prior to expiry. There were also delays in the police enquiry stage that contributed to late renewals.

Remedial action taken included: rewording of renewals reminder; additional reminders; new late renewal enquiry form; inclusion of performance review by Head of Operations.

Ongoing monitoring has revealed a 100% improvement in the number of applications received at least 6 weeks prior to expiry. There was also a 100% improvement in the number of application processed prior to expiry.

The secondment of a police officer will continue with further improvement expected.

A training handbook has been written for enquiry officers with an open learning pack planned.

A system of random audit has been specified and is included in the Force Reference Manual on Firearms Licensing.

HMIC Comments 2002

HMIC discharges this suggestion.

No 10 -

The Force implement a quality control audit system to ensure that all incidents are recorded correctly. (paragraph 6.66)

Force Position 2002

The Force Crime Management system places area Crime Managers in an audit role in respect of the correct recording and classification of crimes and offences on an ongoing basis. This is reinforced by the role of the Head of Crime Support who has audit responsibilities for Crime Management and has an audit policy in place. The Force operates an ethical crime recording system and a working group is reviewing our compliance with national counting rules to further ensure the accuracy of our practice.

HMIC Comments 2002

HMIC will revisit this suggestion at the next Review Inspection and conduct an incident audit.

Force Position 2003

The Detective Chief Inspector, Crime Support is presently designated as Force Crime Registrar and sits on the Scottish Crime Recording Standard Working Group. This group will also examine incident recording and suggest a more ethical standard that is victim orientated. Northern Constabulary will commit to the new standard and an in-Force Implementation Team has been put in place to assist in the move to the new standard and attending issues.

HMIC Comments 2003

HMIC notes the establishment in force of an Implementation Scheme for the new ACPOS Crime Recording Standard to be introduced in April 2004. A crime/incident audit was carried out as part of the Review Inspection, and highlighted no serious concerns. The vast majority of incidents relating to crimes, offences and road accidents were correctly recorded as such. Whilst HMIC discharges this suggestion at this time, quality control in respect of recording to the new standard will be a feature of the next Primary Inspection.

No 11 -

An assessment is undertaken to establish the intelligence analysis requirement and that an action plan is put in place to secure the necessary improvement.

(paragraph 6.68)

Force Position 2002

The Force is in the forefront of implementation of the National Intelligence Model (NIM) and as expected the introduction of Strategic and Tactical Tasking and Co-ordinating meetings have increased the requirement for an improved analytical capability.

A second analyst has been employed and we have developed a policy of sending Local Intelligence Officers (LIO's) to the Scottish Police College for analytical training.

The two analysts located within the Force Intelligence Bureau will provide an analytical capability at a Strategic Level for the Force particularly in relation to Level 2 and 3 Crime, whilst also servicing Area Commands at Level 1.

LIO's will be able to provide a basic service to their respective area at Level 1.

Through the NIM we have now developed a draft control strategy and the position regarding our analytical capability will be monitored and reviewed regularly.

HMIC Comments 2002

HMIC notes that the force is making progress in the implementation of the National Intelligence Model. The effective use of intelligence is paramount and HMIC will revisit this suggestion at the next Review Inspection.

Force Position 2003

The Force has reviewed its use of the NIM and a better structure of level 1 TTCG meetings put in place with increased frequency. These will feed the new Force TTCG and the entire meeting structure is moving towards implementing the NIM standard forms. This is presently being piloted and working well.

The analytical capability has been further enhanced with two more analysts being employed, bringing the Force total to four. A researcher's position has also been budgeted for, but current accommodation is hampering an appointment. Efforts are being made to resolve this problem.

HMIC Comments 2003

The changes to structure and frequency of Tasking Groups in implementing the National Intelligence Model is noted. The additional analysts posts and the proposition to introduce a researcher will assist the force in further developing its analytical capability in this important area. HMIC considers this suggestion discharged.

No 12 -

The Force actively consider the recommendations of the thematic inspection on asset confiscation as they might be applied to improve the present position

(paragraph 6.72)

Force Position 2002

Northern Constabulary fully accepts the recommendations made by HMIC in the Thematic Inspection and Superintendent Macdonald's report.

A Financial Investigation Unit/Computer Crime Unit has been formed and will be staffed by a Detective Sergeant and two Detective Constables. The Detective Sergeant is in place.

The Unit's remit will include implementation of all the recommendations contained within the two reports.

HMIC Comments 2002

HMIC notes that the force has formed a Financial Investigation Unit/Computer Crime Unit and will revisit this suggestion at the next review inspection.

Force Position 2003

The Financial Intelligence/Computer Forensic Unit has been staffed as indicated above for some time now. The learning curve has been steep, but there is now an effective and very busy team in place. A further two detectives have been appointed and are due to take up their posts in the near future. It is anticipated that the POCA will significantly increase the workload and the two new officers will adjust the force's ability to respond to these anticipated demands.

HMIC Comments 2003

Since the suggestion was made in the Primary Inspection Report of 2000, significant impetus has been given to this area of police activity with the introduction of the Proceeds of Crime Act 2002. The Act provides new investigatory and cash seizing powers for the police and other agencies to recover the proceeds of criminal activity. This allows for a more proactive approach to be taken in money laundering investigations. This will affect not only major crime, but will be a very useful tool for forces to tackle volume crime.

The increase in staffing to the Financial Intelligence/Computer Forensic Unit reflects the importance the force places on this important area of work, and HMIC has viewed details of asset confiscation inquiries conducted by the Unit in 2002/03 which total in excess of £13m. HMIC discharges this suggestion.

• THEMATIC UPDATE

HMIC notes the force's position in respect of progress made against the recommendations of the following thematic inspections conducted since the Primary Inspection of Northern Constabulary.

The following updates have been provided by the force:

The Force is responding to the issues raised within this thematic review by:-

Undertaking a strategic Best Value Review of Public Reassurance through Visibility and Effective Deployment during 2003/04. Areas under review will include shift systems, resource allocation, use of Special Constabulary and the role of traffic wardens, and Force marketing. As part of this review, a major consultation exercise will also be undertaken building on the research findings from the thematic.

The Force is well advanced in progressing the implementation of the National Intelligence Model and it has been recognised that there is the need to integrate this approach with that of existing practice on Problem-Solving Policing. This work will be carried forward during 2003/04 as part of the service improvement plan from our strategic Crime Management Review of 2002/03.

The Force has undertaken a programme of Customer Service training aimed at all frontline staff and recommendation from our Crime Management Review includes greater focus within that in respect of response to initial response to crime.

The Force has responded to this thematic by negotiating a revised protocol with the Highlands and Islands Fire Brigade and a group set up to produce a comprehensive Force Reference Document in respect of fires. This policy document is currently going through the Force Decision-making process to become policy.

The Force has responded to this thematic as follows.

In May 2001, a Best Value Board was set up to oversee best value including monitoring of progress and outcomes from service reviews. This board meets quarterly and is chaired by the Deputy Chief Constable. It consists of a representative group of senior managers within the Force, the Convenor and one other Northern Joint Police Board member and a representative from the Highland Council. The Continuous Improvement Manager submits reports to this Board in respect of best value reviews. Minutes from this meeting are available to the Northern Joint Police Board and Force Policy Forum.

Northern Constabulary seeks to integrate the principles of continuous improvement and best value into its key management processes. As such we have elected to identify one strategic service review per annum as part of the Force Action Plan. This review rests with the Continuous Improvement Unit and is carried out by a team of two seconded police officers throughout the year. A review scrutiny team is established to challenge the review throughout and ensure transparency and openness. An additional Police Board member and a relevant external stakeholder, for example, Area Procurator's Fiscal, is invited to sit on this committee.

A two day induction for review team members is carried out which allows for discussion and planning in relation to the scope. A further induction is also carried out at the first meeting of the review scrutiny team. The secondment of officers to the Continuous Improvement Unit also ensures that they have access to skills and information within the unit and where external training is identified as relevant, this is provided.

All strategic or significant review in Force is carried out in line with the principles of Best Value. Where appropriate this is further ensured by the involvement of members from the Continuous Improvement Unit in projects.

Best Value reviews are identified within the Force Action Plan as part of our strategic planning process. All key senior managers are involved in this process including the annual Strategy Seminar.

The Force has responded to this thematic by reviewing our position against the report and a number of actions were identified to progress our position. A copy of the internal report is enclosed. (HMIC Comment: a copy of the force's internal report was received for the information of HMIC.)

The Force has responded to this thematic by reviewing its position and putting into place a Financial Investigation and Computer Forensic Unit within Crime Support. A copy of the business plan for this unit is enclosed. (HMIC Comment: A copy of the Business Plan was received for the information of HMIC.)

• RACE EQUALITY SCHEME

The Race Relations (Amendment) Act 2000, which came into full effect in Scotland in November 2002, created a positive duty for Chief Constables, and public authorities, to eliminate unlawful racial discrimination and promote equality of opportunity and good relations between persons of different racial groups. The legislation also required the production of a Race Equality Scheme, setting out how this duty was to be met.

HMIC, in consultation with the Commission for Racial Equality, has assessed the Force's Race Equality Scheme and notes that Northern Constabulary timeously produced a Race Equality Scheme, which effectively addresses the statutory requirements, detailing the Force's policies and functions and how they are being assessed for impact on racial groups. The document also sets out a coherent action plan across a broad range of activity. The Race Equality Scheme does not, however, document a framework to secure the views of minority ethnic groups and the force consultation policy, to which the Race Equality Scheme refers, is a generic document with no particular focus on racial matters. Use of consultation would be appropriate to better inform the process by which information regarding service provision is selected for translation. As part of this process advice could also be sought as to how this could be most effectively circulated to minority ethnic communities. HMIC welcomes the fact that almost all police and front line support staff have received cultural awareness training and would encourage the force to develop evaluation of the training as it considers refresher training for those who were first trained. HMIC will continue to monitor the progress being made by the force to complete the actions described within the Race Equality Scheme.

• CRIME MANAGEMENT

The force approach to the management of crime was assessed as part of the Review Inspection. This included examination of force policy and guidance documents and interviews with crime management and other staff at force headquarters and in the Area Commands.

The force's approach to Crime Management was established some 5 years ago as part of Devolved Resource Management (DRM) being introduced at that time. The responsibility for crime investigation is devolved to the eight Area Commands with central support in terms of specialist skills, resources and policy development being provided through a Service Level Agreement by Headquarters Crime Support and Operational Support Service Units.

Accountability for effective crime management therefore rests at Area Command level. Local policing plans reflect priorities and this is monitored through quarterly operational performance reports and performance review meetings with the Area Commander and the Head of Operations (Chief Superintendent). The force's Crime Management Strategy defines roles and responsibilities for staff involved in the crime management system to prevent duplication of effort and to ensure that crimes are addressed at the appropriate level.

Each Area Command has an individual Crime Management Unit headed by an Area Crime Manager of Detective Inspector or Detective Sergeant rank. They are supported by a member of support staff, detective officers, a Local Intelligence Officer and an Area Drugs Officer. The Detective Superintendent, Crime Support, Force Headquarters is responsible for Crime Management provision within the force and will take the responsibility for the investigation of designated serious crime as Senior Investigating Officer when so directed by the Head of Operations (Chief Superintendent). He is responsible for developing and auditing policy in relation to crime and for ensuring adequate support and resilience in respect of serious and specialist crime.

The investigation of serious crime is, of course, a crucial area of police activity which can have a direct impact on public confidence in the force. It is important that serious crime can be identified and allocated the appropriate resources at an early stage of the investigation. Robust procedures must be in place with clear lines of supervisory responsibility and accountability established and widely understood. Whilst responsibility for crime rests with Area Commands, with appropriate Crime Management support, the investigation of serious crime requires corporate ownership and accountability.

The force's Crime Management Strategy directs that certain categories of crime should be investigated by detective officers who have specific training to deal with such matters. The force has developed a Crime Categorisation and Responsibilities Matrix which lists crime types and responsibilities for investigating and reporting these crimes. The Major Crime Policy sets out minimum standards in the investigation of major crimes when enquiries are likely to be of public concern, complicated, protracted or involve the deployment of large numbers of personnel. This policy has been reviewed to reflect the nationally agreed standards for such investigations.

Effective supervision of the investigation of crime is a vital element in any crime strategy to ensure the public is provided with a consistent quality of service appropriate to their needs and that offenders are brought to justice. Inverness Area Command and Ross, Cromarty and Skye Area Command each have a dedicated Detective Inspector. The force has recently appointed an additional 2 detective inspectors, each responsible for three Area Commands. These officers are based in headquarters at Inverness, although they necessarily spend much of their time in their respective Area Commands. However, working from Headquarters also ensures that close contact is maintained with the Detective Superintendent and his deputy which has the added benefit of facilitating greater scrutiny of ongoing investigations. The appointment of the additional detective inspectors extends coverage to all eight Area Commands, providing added resilience in terms of an increased pool of Senior Investigating Officers and ensuring a greater level of oversight of crime investigations. HMIC acknowledges this development which has been positively received in force.

On a daily basis, the force now operates morning briefing meetings to assess the previous 24-hour crime and noteworthy incidents. These meeting are held locally in the Area Commands and are followed by a forcewide briefing meeting with Crime Support at Force Headquarters. This latter tier of oversight is important in ensuring that incidents receive an adequate and appropriate response. In addition, HMIC noted that the Force Executive take a particular interest in operational performance and service delivery at morning briefings.

Dealing with sudden and suspicious deaths is a sensitive and important area of police work. The Force's Crime Management Handbook details the procedures to be adopted when investigating sudden deaths. Uniformed officers will attend a report of a sudden death. It is now force policy that a detective officer will also attend the scene. The detective will satisfy himself or herself that the death is not suspicious and, in addition, all deaths are photographed and video taped. Furthermore, all sudden deaths and fatal accidents are included in the Area Command incident logging as an item for the daily report mentioned above.

At the time of the Review Inspection, the force had recently concluded a Best Value Service Review of Crime Management. This included: Structure of Crime Management; Crime recording and reporting; the Investigation of Crime; Intelligence and Proactivity; Functional Areas across the Force and Interface with Other Agencies. The force is currently considering the report and its response to the "Opportunities for Improvement" identified. In addition, the force is considering the recommendations of an internal review of the management of serious crime.

HMIC notes the developments to the approach the force has undertaken to the management of crime since the last Primary Inspection. The above reports will have a bearing on how service improvements will be delivered and HMIC will include Crime Management in the next Primary Inspection of the force.

• PROFESSIONAL STADARDS AND COMPLAINTS

The immense, geographical area covered by Northern Constabulary brings with it a clear logistical challenge when responding to complaints, of a criminal or misconduct nature, made by members of the public against police officers. A recognition of this challenge, and some serious cases that have attracted significant media attention, prompted a recent review of Force policies and procedures. HMIC's inspection has taken place at a time when an acknowledgement that there were areas for improvement has led to a firm Executive commitment to immediate action and further imminent change.

The root and branch restructuring of how the Force responds to complaints has included processes, people and premises. All of this has been led by the Deputy Chief Constable (DCC) in a tangible and clear way.

The Professional Standards and Complaints Unit (PS & CU) has been re-designated as a separate Service Unit with the head of the unit reporting directly to the DCC. This brings the unit into line with other Scottish Forces.

HMIC observed that staffing had been increased, the premises expanded and the IT system upgraded - reflecting a considerable resource investment into this important area.

HMIC noted as good practice that the head of the unit had visited Area Commanders to seek their views on process changes, and that complaints issues were now on the agenda of weekly Area Commander conference calls in which the Head of PS & CU can participate when required. The investigation of complaints was being viewed as a way of driving up standards and changing policy, not just a punishment oriented system.

The whole process of handling a complaint has changed significantly. On receipt of a complaint locally, an initial statement is now taken from the complainer and forwarded to the PS & CU along with a brief initial report from the local Inspector and outline of the background to the issue. This documentation is reviewed by the DCC personally and decisions taken regarding the appointment of a centrally based Investigating Officer. The process allows for a quicker and more consistent response to complaints and has been devised in consultation with the Area Procurator Fiscal.

HMIC believes that this new process will provide many benefits to the Force and looks forward to a future review with particular focus on the effects on timescales and budgeting.

HMIC noted that conciliated cases were concluded by letter from Force HQ. The experience of other Forces suggests that a local, informal, written conclusion at the time when the conciliation settlement is secured, or explanation accepted, may assist to secure such agreements. HMIC often sees cases where Forces conciliate, only later to have it refuted by the complainers, so it is helpful if this is clearly documented. Force policy on local conciliation is now included within a new Force manual.

A number of random files were examined as part of the inspection process - all were found to be in good order with timescales generally improving, although not yet at the targets set of 14 days and 10 weeks for initial report and full report to the Procurator Fiscal respectively. HMIC was pleased to note that good practice from other Forces had been adopted in relation to the information contained in the Notice to officers under investigation.

In addition to the substantial measures already taken, an action plan for change has been produced with most tasks scheduled for completion by August 2003. The thirty actions identified indicate further fundamental shifts in resourcing, process, information availability and outcomes.

HMIC noted that the action plan contains commendable good intentions to train local inspectors and has planned the dissemination of guidance notes to them and Area Commanders.

The force acknowledges the need for policy, in line with the Lord Advocate's Guidelines, on when to bring in an external force. This is documented in a new Force manual.

HMIC is encouraged by the rapid progress made by the Force in a short period of time. There is a clear Executive commitment to introducing practical policies that work, resourcing them appropriately and importantly keeping them within a new manual.

The Force also recognises that there is still a long way to go - new practices have still to be thoroughly tested and significant elements, such as professional standards and links with criminal intelligence, data protection and ethical standards, have not yet begun to develop. There is also the far from trivial issue of public confidence. Many of the changes made are internal to the Force and it remains a challenge to turn the unequivocal commitment of staff into a positive public perception.

HMIC commends the Force for its commitment to change and the work already undertaken and looks forward to assessing progress at the next Primary Inspection.